A citizens’ panel is a deliberative democracy format in which decisions are made by a cross-section of society — a so-called “mini-public.” Because a citizens’ assembly is grounded in the best available science, harnesses collective intelligence, and seeks consensus, it is an empowering decision-making method for citizens and communities. Its aim is to enrich policymaking and increase trust within society.

Since the 1970s, the citizens’ assembly format — now widespread across the world — has proven that when people are given decision-making power and enough time, provided with balanced and evidence-based information, and guided through a well-designed process, they are capable of making decisions in the public interest on complex and controversial issues. Citizens’ assemblies are particularly well-suited for addressing long-term challenges, breaking political deadlocks, and resolving issues that polarise society.

A citizens’ assembly differs from conventional participation and decision-making processes in three key ways:

1. Participants are selected through a representative random selection process (a “democratic lottery”), ensuring that the discussion table brings together a group reflecting the diversity of the population.

2. Deliberations are preceded by a learning phase: scientists and experts present the best available knowledge on the topic, while stakeholders provide practical insights into problems and possible solutions.

3. A citizens’ assembly must have influence on official decisions: the recipient(s) of the assembly’s results and the way the results will be implemented must be known before it begins.

Among democracy innovators, citizens’ assemblies are regarded as one of the most impactful formats, increasingly spreading at the local, national, EU, and even global levels.

The Citizens’ Panel on Good Life is the sixth citizens’ assembly to be held in Estonia, this time on the theme “What is needed for a good life?” This major event has been initiated to broaden public discussion, highlighting topics that matter to people and enabling them to be explored in a climate of trust.

The aim of the Good Life Citizens’ Assembly is to amplify the impact of various initiatives that foster debate on alternative economic models and help guide policymaking. This year, several initiatives are taking place to shape our shared future. Through the Hakkab looma! visioning gatherings, people can share their dreams for the future until mid-August; in October, the Degrowth Estonia and Biotoopia conferences will discuss “Life in Post-Growth Estonia”; and in November, the Rohetiiger movement will unveil its balanced economy concept for Estonia.

In a democratic society, it is essential to develop open governance, as it is linked to the country’s competitiveness (Arenguseire Keskus, 2023), sustainable state functioning (Taasiseseisvunud Eesti kolm aastakümmet inimarengu luubi all, 2022), the ability to cope during crises, and ensuring people’s sense of safety and belonging (Eesti inimarengu aruanne 2023), as well as the overall level of societal trust (OECD report Trust in Government, 2022). In Estonia’s Open Government Partnership action plans, one of the key cross-cutting activities is testing innovative participation methods in cooperation with civil society.

Innovative ways of engaging the population play a crucial role in advancing the principles of open governance. According to OECD (2024), the opportunities to participate in government activities—and how people perceive those opportunities—are an important factor influencing trust. Since 2016, more than 40 local and national citizens’ assemblies have taken place in Eastern Europe, including three in Estonia (DemocracyNext, 2024). Citizens’ assemblies are an innovative, forward-looking approach to public participation that enhances the adaptability of a digital state and representative democracy.

The Hea elu (Good Life) Citizens’ Assembly aims to address the following issues in Estonia:

• There is too little public debate about the foundations of the economic system (people’s and nature’s well-being), and economic inequality is not perceived as an economic problem.

• There is no connection between socioeconomic issues and the implementation of climate and environmental policies—yet researchers under the Earth4All initiative argue that without this connection, a transition to a sustainable economy valuing the well-being of all is not possible.

• Estonians have low and declining trust in the government, parliament, and political parties (OECD Trust Survey 2024). The OECD emphasizes that large-scale societal changes and transitions can only be achieved if there is sufficient trust among the population.

A civil society–initiated citizens’ assembly can help alleviate these societal problems. Of course, a single assembly will not solve everything. A permanent national citizens’ assembly alongside the parliament or government would contribute to achieving this goal more systematically.

Participants are selected by random sampling to ensure the group is representative of the population — a “mini-Estonia.” Every Estonian resident aged 16 or over has an equal chance of being chosen.

For this citizens’ assembly, anyone can register their interest in taking part. In addition, thousands of people across Estonia will receive personal invitations through a random selection process in late October. Using a special computer algorithm, 30 people will be chosen from among all those who have registered their interest, ensuring that as a group they reflect Estonia’s population as accurately as possible, taking into account factors such as age group, gender, place of residence, education level, and economic well-being.

Participation is voluntary, but we expect participants to attend all five meeting days. Active involvement in discussions, gaining new knowledge, and making proposals are important. As a participant, you do not need to be an expert or hold a specific worldview — you are welcome just as you are, bringing your own life experience and values.

The citizens’ panel will take place over five days across three weekends in January and February.

It is important to attend in person on at least one day of each weekend and to take part in the final vote on the joint proposals. The organising team will help find solutions to ensure that the selected participants can attend the meetings taking place in different locations across Estonia.

The list of participants will not be made public during the citizens’ assembly. Each participant has the right to decide for themselves how they wish to share their involvement with the public. During the assembly, participants can indicate if they do not wish to appear in photos or video footage.

All materials related to the citizens’ assembly — including schedules, background materials, and outcomes — will be made publicly available on the website and shared via social media channels. You can also subscribe to the citizens’ assembly newsletter to stay informed about key moments throughout the process.

The citizens’ assembly format, used around the world, has proven that when people are given decision-making power and enough time, provided with balanced and evidence-based information, and guided through a well-designed process, they are capable of making decisions in the public interest on even the most complex and controversial issues. Such recommendations often take future trends into account more than official decisions do.

The citizens’ assembly process does not replace the role of experts, interest groups, political parties, or other societal actors in policymaking. Instead, it creates an opportunity to form a position that reflects the population as a whole on a specific issue — and this is how the results should be understood.

A participant in a citizens’ assembly is not expected to become a city official or an expert; their role is to remain a citizen and, in that role, to make proposals.

The citizens’ assembly provides a supportive and safe space for participants to reflect on the information they have received and to work together to develop collective proposals.

In a mini-public, what matters most is its capacity to work as a group — its “collective intelligence” — rather than the individual intelligence of its members.

As a result of the process, the citizens’ assembly — representing the diversity of Estonia — will formulate shared positions and proposals on the topics discussed. These proposals will serve as the basis for public initiatives that anyone can support with their signature — together, we can bring the outcomes to the Riigikogu. All results will be made public.